Japan is making progress toward opening its doors to refugees in “small steps” but could do more to support displaced people in areas of conflict, including the Rohingya, U.N. High Commissioner for Refugees Filippo Grandi said in Tokyo on Friday.

As Japan prepares to accept more foreign workers, Grandi told the Japan National Press Club that Tokyo needs to improve the nation’s treatment of refugees, noting the lack of comprehensive legislation on the issue.

Ahead of the news conference, Grandi met with Justice Minister Takashi Yamashita, who explained the government’s plan to double the number of refugees admitted to Japan to 60 by 2020.